Fire and Aviation Management s1

USDA Forest Service Fire and Aviation Management Briefing Paper February 28, 2005 I ssue: Improving fire suppression operations safety and performance through review, modification, and illumination of doctrinal principles.

P roposal: (1) Review agency doctrine guiding the wildland fire suppression mission (2) Adopt and apply doctrine to improve safety

B ackground: In the last several years the Forest Service has come under enormous scrutiny in its performance of the wildland fire suppression mission. Fire and aviation operations safety, fire suppression expenditures, and accountability for decisions and procedures have all been brought into question. The Agency responses have largely been tactical, without clear anchoring to well understood foundational principles, or doctrine. This approach has contributed to a layering on of prescriptive policies, confusion and frustration in the firefighting workforce, and inconsistency in the Agency approach to and understanding of its fire suppression mission.

K ey P oints: The fundamental issue facing the wildland fire suppression mission is the lack of clear, commonly understood operational doctrine. Because the Agency has not clearly articulated doctrinal principles in this arena, it has no consistent basis for its actions or responses. Agency reaction to fireline tragedies and unfavorable cost performance reviews has been focused on the specifics of each individual tragedy or instance, and the addition of scores of new requirements (prescriptive policies) for fire suppression operations activities. The intent of these actions has been to correct operational error in fireline decision-making, leadership, and fire operations oversight, but bad outcomes are still occurring, efficiencies continue to erode, and Agency leadership is progressively more frustrated. Without clear doctrine, policies and principles are viewed as interchangeable. They are not. Principles are the foundation of judgment, decision-making, and behaviors. Policy is the structure and procedures used to put doctrinal principles into action. (See Attachment 1) When so designed, policies (rules) are supportive of effective and safe mission accomplishment. Without clear doctrine, performance expectations and accountability are rule-defined. Without clear doctrine “success” and “failure” are measured by the adherence to or deviation from rules rather than by the behaviors and judgment used to accomplish the task. The current risk to the agency is that improper behaviors, poor judgment, or the lack of critical decision-making skills are seldom evaluated, and may go unnoticed for years until they result in a bad outcome. Through the illumination of clear, shared, and unambiguous doctrine: . decisions and actions will be connected with the overall mission, and will contribute to inter- and intra- program / agency integration and coordination . communication will be consistent and comprehensive, and multiple interpretations of purposes, needs, and desired outcomes will be eliminated . the value of policy to accomplishing the mission will be enhanced. Policy, when developed as expressions of guiding principles will serve to define the context of decision making rather than confine the decision maker . decision authority, responsibility, and freedom to act will be precisely defined . the foundation upon which the agency establishes consistency in its response to criticism, arbitration, and litigation will be well established . firefighters and fireline leaders will be provided with an unambiguous means to evaluate risk vs. gain; to avoid both risk aversion and recklessness

Doctrinal Review – Wildland Fire Suppression Page 1 of 3 P roposed S trategy: . Near-Term. (1) Identify and adopt doctrinal principles which guide performance of the wildland fire suppression mission. Ensure these principles represent the reality of the work, the environment, and the mission. Ensure these principles are understood and meaningful to every employee and the public at large, and are the heart of safe and effective mission accomplishment; (2) Implement the doctrinal principles as the foundation of effective leadership, and the basis for safe and effective fire suppression activities . Long-Term. Evaluate related policy and guidance against established doctrine. Modify and amend as necessary to meet the intent of doctrinal principles

N ear- T erm E xecution: . Develop initial draft of doctrinal principles through the mechanism of a facilitated working group made up of outstanding employees from all levels within the Forest Service  Senior level line officers (Deputy Chief, Regional Foresters, Forest Supervisors. NOTE: at least one member will be from the Line Officer Team (LOT))  Mid-level fire and aviation managers (Regional Director, FFMO)  Washington Office FAM (AD Operations, Fire Operations Safety)  Operators (ICT1, ICT3, DFMO, IHC Superintendent, Smoke Jumper Foreman, Engine Captain)  Office of General Counsel  Legislative Affairs  Human Resources Specialist o Working Group Tasks - Meeting  Review purpose and need, establish measures of success  Review enabling legislation providing mandate for Forest Service fire operations mission  Identify guiding principles for fire suppression mission accomplishment  Group guiding principles into doctrine  Develop draft document  Identify a core “board of directors” to provide oversight and consistency in accomplishment of post-conference and follow-on tasks o Working Group Tasks - Follow-Up  Network draft to fire operations and line officer communities for comment  Incorporate comments and prepare final recommendation for approval by Chief

L ong- T erm E xecution: o Perform policy review pursuant to doctrinal principles. Review, revise, and amend as necessary, all:  Tools and techniques  Measures of Success  Performance expectations o Develop quality assurance process in view of policy review and performance expectations

C ontact: Ed Hollenshead – National Fire Operations Safety Officer – (208) 387-5102

Doctrinal Review – Wildland Fire Suppression Page 2 of 3 Attachment 1

USDA Forest Service Fire Suppression Operations Doctrinal Template

Mission The legal agency mandate

Principles Doctrine The foundation of The body of principles that guides the judgment, actions of the organization decision-making, and behaviors

Policy The structure and procedures used to put doctrinal principles into action

Tools and Performance Measures of Success Techniques Expectations

Doctrinal Review

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